Evaluating public participation in environmental decision-making: EPA's superfund community involvement program

This article discusses an 8-year, ongoing project that evaluates the Environmental Protection Agency's Superfund community involvement program. The project originated as a response to the Government Performance and Results Act, which requires federal agencies to articulate program goals, and evaluate and report their progress in meeting those goals. The evaluation project assesses how effective the Superfund community involvement program is in promoting public participation in decisions about how to clean up hazardous wastes at Superfund sites. We do three things in the article: (1) share our experience with evaluating an Agency public participation program, including lessons learned about methods of evaluation; (2) report evaluation results; and (3) address a number of issues pertaining to the evaluation of public participation in environmental decision-making. Our goal is to encourage more environmental managers to incorporate evaluation into their public participation programs as a tool for improving them. We found that written mail surveys were an effective and economical tool for obtaining feedback on EPA's community involvement program at Superfund sites. The evaluation focused on four criteria: citizen satisfaction with EPA information about the Superfund site, citizen understanding of environmental and human health risks associated with the site, citizen satisfaction with opportunities provided by EPA for community input, and citizen satisfaction with EPA's response to community input. While the evaluation results were mixed, in general, community members who were most informed about and involved in the cleanup process at Superfund sites generally were also the most satisfied with the community involvement process, and the job that EPA was doing cleaning up the site. We conclude that systematic evaluation provides meaningful and useful information that agencies can use to improve their public participation programs. However, there need to be institutionalized processes that ensure evaluation results are used to develop and implement strategies for improvement.     

Performance Criteria, Compliance Success, and Vegetation Development in Compensatory Mitigation Wetlands

The US Army Corps of Engineers often requires wetland creation or restoration as compensation for wetlands damaged during development. These wetlands are typically monitored postconstruction to determine the level of compliance with respect to site-specific performance standards. However, defining appropriate goals and measuring success of restorations has proven difficult. We reviewed monitoring information for 76 wetlands constructed between 1992 and 2002 to summarize the performance criteria used to measure progress, assess compliance with those criteria, and, finally, to evaluate the appropriateness of those criteria. Goals were overwhelmingly focused on plant communities. Attributes used to assess the quality of restored plant communities, including percent native species and the Floristic Quality Index, increased over time but were apparently unrelated to the number of species planted. Compliance frequencies varied depending on site goals; sites often failed to comply with criteria related to survival of planted vegetation or requirements that dominant plant species should not be exotic or weedy, whereas criteria related to the establishment of cover by vegetation or by wetland-dependent plants were often met. Judgment of a site’s success or failure was largely a function of the goals set for the site. Some performance criteria were too lenient to be of value in distinguishing failed from successful sites, whereas other criteria were unachievable without more intensive site management. More appropriate goals could be devised for restored wetlands by basing performance standards on past performance of similar restorations, identifying consistent temporal trends in attributes of restored sites, and using natural wetlands as references.     

Oak Conservation and Restoration on Private Forestlands: Negotiating a Social-Ecological Landscape

In the midwestern United States, oak (Quercus spp.) forests are considered critical habitat for conserving biodiversity and are a declining resource. Ecological conditions, such as deer herbivory and competition from more mesic broad-leaved deciduous species, have been linked to poor oak regeneration. In the Midwest, where up to 90% of forestland is privately owned, a greater understanding of social dimensions of oak regeneration success is especially critical to designing effective restoration strategies. We sought to determine factors that serve as direct and indirect constraints to oak restoration and identify policy mechanisms that could improve the likelihood for restoration success. We conducted in-depth qualitative interviews with 32 natural resource professionals working in the Midwest Driftless Area. We found that most professionals anticipate that oak will remain only a component of the future forest. Furthermore, they identified the general unwillingness of landowners to adopt oak restoration practices as a primary driving force of regional forest change. The professionals pointed to interdependent ecological and social factors, occurring at various scales (e.g., economic cost of management, deer herbivory, and exurban residential development) as influencing landowner oak restoration decisions. Professionals emphasized the importance of government cost-share programs and long-term personal relationships to securing landowner acceptance of oak restoration practices. However, given finite societal resources, ecologically- and socially-targeted approaches were viewed as potential ways to optimize regional success.     

Landowner motivations for watershed restoration: lessons from five watersheds

Collaborative watershed management initiatives have increased tremendously over the past decade. One of the critical questions for these initiatives is how to influence private land management practices to improve watershed health. This article researches landowner motivations and preferences for watershed restoration efforts in five watersheds in Western Oregon. Based on a survey of 446 landowners and 80 personal interviews, the research revealed that landowner perspectives vary by socio-economic, cultural, and land use characteristics. They are strongly motivated by a concern for future generations and interpersonal influence is particularly important. Finances, time, and unfamiliarity were all significant barriers to the adoption of conservation practices. The findings also revealed considerable variation among landowners as to their trusted sources of information and preferred outreach methods. Beyond the findings in Oregon, the research suggests that watershed initiatives need to understand landowner characteristics and motivating factors to better promote watershed restoration and target outreach efforts.     

Factors affecting private forest landowner interest in ecosystem management: linking spatial and survey data

Many factors influence forest landowner management decisions. This study examines landowner decisions regarding participation in ecosystem management activities, such as a landscape corridor cutting across their private lands. Landscape corridors are recognized worldwide as an important tool in biodiversity conservation. For ecosystem management activities to occur in areas dominated by a multitude of small private forest landholdings, landowner participation and cooperation is necessary. Data from a survey of landowners combined with an analysis of their land's spatial attributes is used to assess their interest in ecosystem management. Results suggest that spatial attributes are not good predictors of an owner's interest in ecosystem management. Other factors such as attitudes and opinions about the environment are more effective in explaining landowner interest. The results have implications for any land manager using GIS data and implementing ecosystem management activities on private forestland.     

Bird Use of Restoration and Reference Marshes Within the Barn Island Wildlife Management Area, Stonington, Connecticut, USA

/ Tidal marshes have been actively restored in Connecticut for nearly 20 years, but evaluations of these projects are typically based solely on observations of vegetation change. A formerly impounded valley marsh at the Barn Island Wildlife Management Area is a notable exception; previous research at this site has also included assessments of primary productivity, macroinvertebrates, and use by fishes. To determine the effects of marsh restoration on higher trophic levels, we monitored bird use at five sites within the Barn Island complex, including both restoration and reference marshes. Use by summer bird populations within fixed plots was monitored over two years at all sites. Our principal focus was Impoundment One, a previously impounded valley marsh reopened to full tidal exchange in 1982. This restoration site supported a greater abundance of wetland birds than our other sites, indicating that it is at least equivalent to reference marshes within the same system for this ecological function. Moreover, the species richness of birds and their frequency of occurrence at Impoundment One was greater than at 11 other estuarine marshes in southeastern Connecticut surveyed in a related investigation. A second marsh, under restoration for approximately ten years, appears to be developing in a similar fashion. These results complement previous studies on vegetation, macroinvertebrates, and fish use in this system to show that, over time, the reintroduction of tidal flooding can effectively restore important ecological functions to previously impounded tidal marshes.KEY WORDS: Estuarine; Tidal marsh; Wetland birds; Restoration     

Mowers versus growers: Riparian buffer management in the Southern Blue Ridge Mountains,USA

Despite long-standing knowledge of the benefits of riparian buffers for mitigating nonpoint source pollution, many streams are unprotected by buffers. Even landowners who understand ecological values of buffers mow riparian vegetation to the streambank. Do trends in rural riparian conditions reflect the development of riparian forest science? What motivates residential riparian management actions? Using high-resolution orthoimagery, we quantified riparian conditions and trends between 1998 and 2015 in the rural upper Little Tennessee River basin in Macon County, North Carolina and explored how landowners view riparian zone management and riparian restoration programs. Buffer composition in 2015 was as follows: no buffer (32.5%), narrow (19.3%), forested (26.7%), shrub (7.2%), and intermediate (7.0%). Relative to 1998, the greatest decrease occurred in the no buffer class (−17.7%, 46 km) and the largest increases occurred in the shrub (+72.5%, 20 km) and narrow (12.6%, 14 km) classes. Forested buffer marginally increased. Semi-structured interview data suggest that landowners prioritize recreational and scenic aspects of riparian buffers over ecological functions such as filtration and bank stabilization. Riparian restoration programs might be made more enticing to non-adopters if outreach language appealed to landowner priorities, design elements demonstrated intentional management, and program managers highlighted areas where ecological goals and landowner values align.     

On‐Site Exposure to Treated Wastewater Effluent Has Subtle Effects on Male Fathead Minnows and Pronounced Effects on Carp

This study tested the hypotheses that (1) exposure to treated Water Reclamation Plant (WRP) effluent will induce biological effects in exposed fish that are consistent with environmental estrogen (EE) exposure; and (2) seasonal differences in effluent composition will moderate biological effects. We conducted seven on‐site exposures using a mobile laboratory. Total estrogenicity of effluents was 10‐ to 20‐fold higher during spring than in fall. Common EEs including steroid estrogens, alkylphenols, and bisphenol‐A were ubiquitous. An unusual spike in total estrogenicity identified a combined sewer overflow event. Fathead minnows (Pimephales promelas) responded to exposure with subtle changes in vitellogenin concentrations and secondary sex characteristics. An opportunity to assess a common carp (Cyprinus carpio) population permanently sustained inside the Stickney WRP revealed pronounced exposure effects, but also the resilience of biological organisms even under long‐term exposure. In contrast to other studies, no histopathological changes were found. The mobile exposure laboratory proved capable of maintaining U.S. Environmental Protection Agency‐recommended exposure conditions while providing flexibility for rapid deployment at multiple sites with minimal operational disruption. Further studies using this platform hold promise to resolve the convoluted interactions between complex effluents and inherent biological complexity.     

Restoration ecology of riverine wetlands: II. An example in a former channel of the Rhône River

Riverine wetlands, which provide numerous valuable functions, are disappearing in floodplains of a channelized European river. A restoration project has been proposed by scientists to restore a former braided channel of the Rhône River by the removal of fine organic sediments in order to enhance groundwater supply. A precise and intensive prerestoration monitoring program during one year (including comparison with a reference channel) has taken into account several variables and ecological performance indicators measured at various spatial and temporal scales. Three restoration techniques were then suggested, taking into account two characteristics of ecosystem functions for increasing restoration success and self-sustainability: (1) the riparian forest as well as the shores must be preserved or disturbed as little as possible; and (2) the upstream alluvial plug must be preserved to prevent direct supply of nutrientrich water from the Rhône River. Among the three restoration options proposed, it was not possible to carry out the less ecologically disturbing one as it was considered too expensive, time consuming, and difficult to realize. A precise and intensive postrestoration monitoring program, conducted over two years, demonstrated restoration success but also unpredicted problems, such as a locally thick layer of fine organic sediment. As long as a self-sustainable state is not achieved, this monitoring should be continued. Afterwards, a less precise and less intensive long-term monitoring should enable the detection of future events that may influence ecosystem changes.     

Ecological Restoration of Coastal Sage Scrub and Its Potential Role in Habitat Conservation Plans

Extensive acreage loss of coastal sage scrub (CSS), isolation of surviving stands, and the federal listing of several animal species with obligate relationships to this plant community, particularly the threatened California gnatcatcher (Polioptila californica), have led to attempts to create CSS to mitigate habitat lost to urban development and other causes. Many of these creations lie within habitat conservation plan (HCP) sites, and they could play a more prominent role by being repositories for plants taken from a single site having site-specific genetics. Among others, one technique that increases initial resemblance to natural stands uses digitized, to-scale photography, which has been ground-truthed to verify vascular plant associations, which appear as mosaics on a landscape. A combination of placing patches of salvaged, mature canopy plants within larger matrices of imprinted or container plant plots appears to significantly enhance immediate use by CSS obligate bird species, accelerate "spread" or expansion of CSS, and can also introduce many epiphytic taxa that otherwise would be slow or unable to occupy developing CSS creations. Reptile, amphibian, butterfly, and rodent diversity in a salvaged canopy restoration case study at the University of California, Irvine, showed CSS species foraging and inhabiting transplanted canopy patches. Using restoration techniques to expand existing CSS stands has more promise than creating isolated patches, and the creation of canopies resembling CSS mid-fire cycle stands is now common. Gnatcatchers and other birds use restorations for foraging and occasional nesting, and in some cases created stands along "biological corridors" appear to be useful to bird movement. Patches of transplanted sage scrub shrubs along habitat edges appear to break up linear edge effects. There are no data on which long-term survival, succession, or postfire behavior can be predicted for CSS restoration sites, and postfire community changes are not part of either mitigation or restoration planning at present. Long-term planning including burning is needed so that a fire-adapted habitat will develop. Restoration is important in retaining genetic resources, for ameliorating edge effects, as habitat extenders in buffer zones around HCP sites, and by providing areas into which natural stands can expand.     

USING TECHNICAL ADAPTIVE MANAGEMENT TO IMPROVE DESIGN GUIDELINES FOR URBAN INSTREAM STRUCTURES1

ABSTRACT: Adaptive management is a heuristic approach to treating stream restoration projects as continuous, cyclic experiments, yielding results to be incorporated into future decisions. This comprehensive assessment views failures as surprises that are valuable lessons. Monitoring, evaluation of data, and communication of results are critical; the monitoring results trigger feedback mechanisms to invoke adaptation to the newly acquired information and communication of new hypotheses, treatments, or policies. The principles of adaptive management were applied to a monitoring study of three urban stream restoration sites in Maryland. Data were collected and evaluated for various restoration techniques, including vanes, cross vanes, step pools, root wads, imbricated riprap walls, and coir fiber rolls. Improvements to the existing Maryland design guidelines and policies were developed as the feedback mechanism. With the increasing application of adaptive management in stream restoration efforts, it is likely that repeated failures will be prevented and future restoration projects will be more successful in achieving their goals.     

Stream restoration and enhancement projects: is anyone monitoring?

Declines in salmon stocks and general watershed health in Washington State, USA, have led to an increase in stream restoration and enhancement projects initiated throughout the state. The increasing number of projects has also raised questions regarding the monitoring of these efforts. Project managers receiving hydraulic project approvals (HPAs) were surveyed to determine whether monitoring was taking place on their projects. About half the project managers surveyed reported the collection of baseline data and the use of biological, physical, chemical, or other water quality measures for their projects. Of those who reported collection of monitoring data, only 18% indicated that monitoring was required. Respondents were also asked to rank the importance of various project goals on a Likert scale. Project managers with projects focusing on “engineering” goals (e.g., roadbed stabilization) were less likely than other project managers to collect baseline monitoring data. Project managers with projects focusing on “restoration/ecological” or “fisheries” goals were more likely than other project managers to collect monitoring measures. Although monitoring appears to be taking place in slightly more than half of the projects surveyed, the nature of the data collected varies widely across projects, and in most cases the monitoring effort is voluntary. This suggests that project sponsors, funders, and managers must consider the issues involved in requiring appropriate monitoring, establishing standardized monitoring guidelines, the time frames in which to monitor, providing other incentives for conducting monitoring, and ensuring adequate funding for monitoring efforts.     

Project River Recovery: Restoration of Braided Gravel-Bed River Habitat in New Zealand’s High Country

Ecological restoration is increasingly becoming a primary component of broader environmental and water resources management programs throughout the world. The New Zealand Department of Conservation implemented Project River Recovery (PRR) in 1991 to restore unique braided gravel-bed river and wetland habitat in the Upper Waitaki Basin in New Zealand’s high country of the South Island, which has been severely impacted by hydroelectric power development. These braided rivers are highly dynamic, diverse, and globally important ecosystems and provide critical habitat to numerous native wading and shore bird species, including several threatened species such as the black stilt. The objective of this study was to review and summarize PRR after more than 10 years of implementation to provide information and transfer knowledge to other nations and restoration programs. Site visits were conducted, discussions were held with key project staff, and project reports and related literature were reviewed. Primary components of the program include pest plant and animal control, wetland construction and enhancement, a significant research and monitoring component, and public awareness. The study found that PRR is an excellent example of an ecological restoration program focusing on conserving and restoring unique habitat for threatened native bird species, but that also includes several secondary objectives. Transfer of knowledge from PRR could benefit ecological restoration programs in other parts of the world, particularly riverine floodplain and braided river restoration. PRR could achieve even greater success with expanded goals, additional resources, and increased integration of science with management, especially broader consideration of hydrologic and geomorphologic effects and restoration opportunities.     

Maintaining land use agreements in Papua New Guinea Mining: ‘Business as usual’?

Most large scale resource extraction projects in Papua New Guinea (PNG) require companies to negotiate with customary landowners for access to development sites. In the discussion of process and challenges of development and operation of projects, particularly mines, the paper, basing as a case study of land use arrangements in PNG mining, has several objectives to address. First, it discusses land use arrangements in the mining industry and how they have evolved over the last few decades. Today, most of these arrangements involve pluralistic framework agreements which have been shaped by land tenure debates, civil uprisings, government initiatives and increasingly politically savvy customary landowners. This pluralistic process encourages key stakeholder involvement, particularly customary landowner participation which has been an innovative piece of sustainable mineral policy development in PNG. Second, the paper argues that ‘it is not business as usual’ for mining companies as it would generally be the case in developed and many developing countries because they are increasingly forced to be proactive in addressing landowner and community interests while managing mining projects. A brief overview of land use debates in PNG is summarised at the outset to provide background to mining and development in the country. Third, the significance of the corporate social responsibility (CSR) paradigm and its impact on business, particularly the mining industry is acknowledged intermittently in the discussion to shed light on how it is influencing development of local communities. Finally, the paper argues that the post-Bougainville period has led to a change of the old enclave model of mining development to a broad based community driven form of development around mining. However, it is difficult to predict as to how this model of mining led development in rural PNG will span out in the long run. In the meantime, genuine landowner partnerships with developers and government in the management and operation of mining projects in the country are proving to be a positive outcome for everyone despite some major challenges.     

Restoring Forest Landscapes: Important Lessons Learnt

Forest restoration at large scales, or landscapes, is an approach that is increasingly relevant to the practice of environmental conservation. However, implementation remains a challenge; poor monitoring and lesson learning lead to similar mistakes being repeated. The World Wildlife Fund (WWF), the global conservation organization, recently took stock of its 10 years of implementation of forest landscape restoration. A significant body of knowledge has emerged from the work of the WWF and its partners in the different countries, which can be of use to the wider conservation community, but for this to happen, lessons need to be systematically collected and disseminated in a coherent manner to the broader conservation and development communities and, importantly, to policy makers. We use this review of the WWF’s experiences and compare and contrast it with other relevant and recent literature to highlight 11 important lessons for future large-scale forest restoration interventions. These lessons are presented using a stepwise approach to the restoration of forested landscapes. We identify the need for long-term commitment and funding, and a concerted and collaborative effort for successful forest landscape restoration. Our review highlights that monitoring impact within landscape-scale forest restoration remains inadequate. We conclude that forest restoration within landscapes is a challenging yet important proposition that has a real but undervalued place in environmental conservation in the twenty-first century.     

The Maine Vernal Pool Mapping and Assessment Program: Engaging Municipal Officials and Private Landowners in Community-Based Citizen Science

The Vernal Pool Mapping and Assessment Program (VPMAP) was initiated in 2007 to create a vernal pool database as a planning tool to foster local compliance with new state vernal pool regulations. In the northeastern United States, vernal pools are seasonal wetlands that provide critical breeding habitat for a number of amphibians and invertebrates and provide important resting and foraging habitat for some rare and endangered state-listed species. Using participant observation, interviews, and focus groups, we examined the engagement of municipal officials and private landowners in VPMAP. Important outcomes of municipal and landowner engagement included mobilization of town support for proactive planning, improved awareness and understanding of vernal pools, and increased interactions between program coordinators, municipal officials, and private landowners. Challenges to municipal and landowner engagement included an inconsistency in expectations between coordinators and municipal officials and a lack of time and sufficient information for follow-up with landowners participating in VPMAP. Our study highlights the importance of developing relationships among coordinators, municipal officials, and private landowners in facilitating positive outcomes for all stakeholders and for effective resource management. We suggest an expanded citizen science model that focuses on improving two-way communication among project coordinators, municipal officials, and local citizens and places communication with private landowners on par with volunteer citizen scientist recruitment and field training. Lessons learned from this research can inform the design and implementation of citizen science projects on private land.     

An Empirical Evaluation of Private Landowner Participation in Voluntary Forest Conservation Programs

The use of voluntary programs targeting resource conservation on private land has become increasingly prevalent in environmental policy. Voluntary programs potentially offer significant benefits over regulatory and market-based approaches. This article examines the factors affecting landowner participation in voluntary forest conservation programs using a combination of parcel-level GIS and remotely sensed data and semi-structured interviews of landowners in Monroe County, Indiana. A logistic regression model is applied to determine the probability of participation based on landowner education, membership in other non-forest voluntary programs, dominant land use activity, parcel size, distance from urban center, land resource portfolios, and forest cover. Both land use activity and the spatial configuration of a landholder’s resource portfolio are found to be statistically significant with important implications for the design and implementation of voluntary programs.

IMPROVING WETLAND POLICY THROUGH AMELIORATION OF ADVERSE EFFECTS ON LOCAL ECONOMIES1

An input-output model was used to estimate changes in expenditure and income flows due to restoring drained wetlands in North Dakota. Results indicate a payment in addition to the amount paid to the landowner may be necessary to make local economies as well off after restoration as before.